tillicum local area plan

Transcription

TILLICUM
LOCAL
AREA
PLAN
THE CORPORATION OF THE
DISTRICT OF SAANICH
BRITISH COLUMBIA
References to General Plan,
1993 throughout this
document means the Official
Community Plan, 2008 as
adopted by Bylaw 8940 on
July 8, 2008.
TILLICUM
LOCAL AREA PLAN
Appendix M to Bylaw 8940
Prepared by the Planning Department,
The Corporation of the District of Saanich
THE CORPORATION OF THE DISTRICT OF SAANICH
BYLAW NO. 8940
TO ADOPT AN OFFICIAL COMMUNITY PLAN
WHEREAS Section 875 of the Local Government Act provides that an official community
plan is a statement of objectives and policies to guide decisions on planning and land
use management, within the area covered by the plan, respecting the purposes of local
government;
AND WHEREAS under Section 876 of the Local Government Act, a local government
may adopt an official community plan;
AND WHEREAS under Section 876 of the Local Government Act, an official community
plan must designate the area covered by the plan;
AND WHEREAS an official community plan has been prepared for all areas of the
District of Saanich consisting of the General Plan, twelve Local Area Plans, and
Development Permit Areas Justifications and Guidelines, attached hereto as Schedule
"A" and comprising the following appendices:
Appendix "A"
Appendix "B"
Appendix “C”
Appendix “D”
Appendix “E”
Appendix “F”
Appendix “G”
Appendix “H”
Appendix “I”
Appendix “J”
Appendix “K”
Appendix “L”
Appendix “M”
Appendix “N”
-
General Plan
Blenkinsop Local Area Plan
Cadboro Bay Local Area Plan
Carey Local Area Plan
Cordova Bay Local Area Plan
Gordon Head Local Area Plan
North Quadra Local Area Plan
Quadra Local Area Plan
Royal Oak Local Area Plan
Rural Saanich Local Area Plan
Saanich Core Local Area Plan
Shelbourne Local Area Plan
Tillicum Local Area Plan
Development Permit Areas, Justification
and Guidelines
NOW THEREFORE the Municipal Council of The Corporation of the District of Saanich
in open meeting assembled enacts as follows:
1.
The official community plan attached hereto as Schedule "A" comprising
appendices "A" to "N" inclusive and made a part of this Bylaw is hereby
designated as the Official Community Plan for the District of Saanich.
…/2
Official Community Plan Bylaw, 2008, No. 8940
Page 2
2.
Bylaw No. 7044, being the "Official Community Plan Bylaw, 1993" is hereby
repealed except insofar as it may repeal any other bylaw.
3.
This Bylaw may be cited as the "Official Community Plan Bylaw, 2008, No.
8940".
Read a first time this 23rd day of June, 2008.
Public Hearing held at the Municipal Hall on the 8th day of July, 2008.
Read a second time this 8th day of July, 2008.
Read a third time this 8th day of July, 2008.
Adopted by Council, signed by the Mayor and Clerk and sealed with the Seal of The
Corporation on the 8th day of July, 2008.
“CARRIE MacPHEE”
Municipal Clerk
“FRANK LEONARD”
Mayor
CONTENTS
1.0
INTRODUCTION
Background ........................................................................................................... 1
Public Involvement ................................................................................................ 1
Community Organization....................................................................................... 1
Boundaries and Features ...................................................................................... 4
Land Use Character .............................................................................................. 4
Social Profile ......................................................................................................... 6
2.0
COMMUNITY VISION .............................................................................................. 9
3.0
SOCIAL AND CULTURAL SERVICES ................................................................. 11
Youth ................................................................................................................... 11
Parents/Families.................................................................................................. 11
Seniors ................................................................................................................ 11
Personal Safety ................................................................................................... 12
Arts and Culture .................................................................................................. 12
Policies ................................................................................................................ 12
4.0
HISTORICAL RESOURCES.................................................................................. 13
Policies ................................................................................................................... 13
5.0
PUBLIC WORKS ................................................................................................... 16
Infrastructure Improvements ............................................................................... 16
Sanitary Sewers .................................................................................................. 18
Water Servicing ................................................................................................... 18
Storm Drains ....................................................................................................... 18
Policies ................................................................................................................ 18
6.0
ENVIRONMENT..................................................................................................... 21
Aquatic Environment ........................................................................................... 21
The Terrestrial Environment................................................................................ 23
Policies ................................................................................................................ 24
7.0
HOUSING .............................................................................................................. 25
Single Family....................................................................................................... 25
Two-family ........................................................................................................... 27
Multi-family .......................................................................................................... 28
Estimated Population/Housing Growth................................................................ 30
Policies ................................................................................................................ 32
8.0
OPEN SPACE AND PARKS ................................................................................. 34
Acquisition Priorities ............................................................................................ 34
Park Development............................................................................................... 37
Greenways and Trails ......................................................................................... 37
Scenic Access ..................................................................................................... 38
Policies ................................................................................................................ 38
9.0
MOBILITY .............................................................................................................. 41
Motor Vehicle Issues ........................................................................................... 41
Neighbourhood Traffic Management................................................................... 43
Bicycle Facilities ................................................................................................. 43
Pedestrian Facilities ........................................................................................... 46
Transit Service .................................................................................................... 48
Policies ................................................................................................................ 48
10.0 COMMERCIAL....................................................................................................... 52
Urban Village Concept ........................................................................................ 52
Commercial Redevelopment Issues.................................................................... 52
Policies ................................................................................................................ 54
11.0 INSTITUTIONAL AND PUBLIC ASSEMBLY........................................................ 55
Policies ................................................................................................................ 57
12.0 DEVELOPMENT COST CHARGES ...................................................................... 58
Policies ................................................................................................................ 58
13.0 DEVELOPMENT PERMIT AREAS........................................................................ 60
Policies ................................................................................................................ 60
14.0 STRUCTURE MAP .................................................................................. Back cover
DEFINITIONS......................................................................................................... 61
MAPS
Map 1.1
Map 1.2
Map 1.3
Map 4.1
Map 5.1
Map 5.2
Map 6.1
Map 7.1
Map 7.2
Map 8.1
Map 8.2
Map 9.1
Map 9.2
Map 9.3
Map 9.4
Map 10.1
Map 11.1
Map 12.1
Map 13.1
Regional Context .......................................................................................... 2
Topography .................................................................................................. 3
Existing Land Use /Zoning............................................................................ 5
Heritage Significance.................................................................................. 14
Infrastructure (Sewer, Water, Drains)......................................................... 17
Proposed Infrastructure Improvements ...................................................... 19
Environmental Features ............................................................................. 22
Housing Types............................................................................................ 26
Potential Multi-Family ................................................................................. 31
Parks and Open Space .............................................................................. 35
Trails and Greenways................................................................................. 39
Road Network............................................................................................. 42
Bicycle Facilities ......................................................................................... 45
Pedestrian Facilities ................................................................................... 47
Transit Service............................................................................................ 49
Commercial Land Use ................................................................................ 53
Institutional Land Use ................................................................................. 56
Development Cost Charge Areas............................................................... 59
Development Permit Areas......................................................................... 61
Tillicum Structure Map.................................................................. Back cover
FIGURES
Figure 1
Figure 2
Figure 3
Population by Age Group ............................................................................. 6
Housing Comparison .................................................................................. 27
Community Transportation Issues.............................................................. 44
TABLES
Table 1.1
Table 1.2
Table 1.3
Table 1.4
Table 1.5
Table 7.1
Table 7.2
Table 7.3
Table 8.1
Table 11.1
Population and Projected Growth................................................................. 6
Population by Age Groups............................................................................ 7
Household Characteristics............................................................................ 7
Housing Tenure ............................................................................................ 7
Labour Force Characteristics ....................................................................... 8
Inventory of Residential Parcels and Dwelling Units .................................. 25
Multi-Family Development Guidelines ........................................................ 29
Estimated Growth in Housing Units and Population................................... 30
Tillicum Park Summary............................................................................... 36
School Capacities and Enrollments............................................................ 54
1.0
INTRODUCTION
Background
The Saanich Official Community Plan comprises the General Plan, 1993 and twelve local area
plans. The General Plan provides a policy framework from an overall municipal perspective,
while the local area plans provide a local context and more detailed policies that help guide the
future of neighbourhoods. They are a reference for Council, as well as for residents and
property owners, when development proposals and capital works are being considered.
The Local Area Plan is intended to provide a reasonable level of certainty about future use,
development, and the quality of life within the area. Council may amend the Local Area Plan,
following a public hearing, or in response to a specific development proposal.
The first Tillicum Local Area Plan was adopted by Council in December, 1981. The Planning
Department initiated a major review and a new plan was adopted in December, 1989. Since
then, amendments have occurred in response to specific development proposals, but the
fundamental policies have not changed.
On November 20, 1995, Council endorsed a program to update all local area plans before 2001.
A public participation process was approved that would tap into the knowledge and interests of
residents through local community associations. The program recognizes that, in general, most
land use goals remain relevant, and that changes are required to address the growing
awareness of environmental and social issues and to update statistics and maps.
Public Involvement
The update of the Plan began with a survey of Tillicum area1 residents. A survey questionnaire
was distributed to all properties, and a set of resident concerns and issues was developed.
Notification of the local area plan update was provided through advertisements in the Saanich
News and Times Colonist. Planning staff met with the executive of the Tillicum Gorge
Community Association, and there was more opportunity for public participation through two
public workshops and an open house.
Community Organizations
The Tillicum Gorge Community Association provides community input to the Municipality on
planning and development issues that directly affect Tillicum residents. In addition, there are a
number of interest groups. The Veins of Life Watershed Society is a group active in cleaning up
and restoring Portage Inlet and the Gorge Waterway. The Portage Inlet Sanctuary Colquitz
Estuary Society (PISCES) promotes the preservation of the designated bird sanctuary and the
protection of Portage Inlet, Colquitz Estuary, and Cuthbert Holmes Parks.
1References
to the “Tillicum area” or “Tillicum” refer to the entire local area as shown on Map 1.1, while
references to “Tillicum Road” relate directly to the roadway.
Tillicum Local Area Plan�June 2000
1
2
3
Boundaries and Features
Tillicum has well-defined boundaries. The area is bound by Trans Canada Highway to the
north, Portage Inlet to the west, Gorge Waterway to the south, and Harriet Road, Whittier
Avenue and Burnside Road to the east.
The topography of the area is varied with higher lands near the intersection of Cowper Street
and Dysart Road, as well as the intersection of Obed Avenue and Tillicum Road as shown on
Map 1.2. Along the northern boundary the land slopes down toward the Colquitz River along
Portage Avenue and Murray Drive. It slopes sharply to Portage Inlet and more gently down
toward the Gorge Waterway.
The Gorge Waterway, Portage Inlet and Trans Canada Highway act as barriers to adjoining
neighbourhoods in Esquimalt, View Royal, and other parts of Saanich.
Land Use Character
Tillicum is a suburban community with a mix of commercial, recreational, and institutional
facilities. Map 1.3 shows existing land use.
Detached homes predominantly form the residential use. They account for 59% of the dwelling
units; apartments account for 32% and townhouses (6%) and duplexes (3%) make up the
remainder. Most of the multi-family sites are clustered along Gorge Road between Harriet and
Tillicum Road, in the Whittier-Burnside Road area, and along Tillicum Road near the Tillicum
Mall.
Tillicum has a wide range of local and regional commercial uses. Local commercial businesses
are concentrated along Tillicum Road and in the Gorge Shopping Centre at the Tillicum/Gorge
Road intersection. Tillicum Mall is located just south of Trans Canada Highway and serves a
regional market. An older strip commercial area is located along Burnside Road West at the
intersection with Harriet Road. Small corner stores are located at Burnside Road East between
Irma Street and Earl Grey Street, and at the intersection of Admirals and Gorge Roads.
Institutional uses include elementary schools, churches, a community hall, a seniors’ complex,
and a daycare.
Linear parks and open space are located on the edges of Tillicum with the Gorge Walkway to
the south, and Cuthbert Holmes Park – part of the Colquitz River park system – to the north.
Four community parks are throughout the area. The G.R. Pearkes Community Recreation
Centre, a regional facility, is located in Tillicum Park next to Cuthbert Holmes Park.
The northern boundary of the local area is Trans Canada Highway which accesses the Western
Community and “up-island” locations. Other primary transportation routes are Admirals Road,
Gorge Road, Tillicum Road, Burnside Road West, and Harriet Road.
4
5
Social Profile
The population of Tillicum grew by 1,000 persons over the last ten years to 9,245 in 1996.
Table 1.1
Population and Projected Growth
1998
1986
1996
(estimated)
Population
Growth
2010
(projected)
Population
8245
9245
10,717 *
12,092 *
Growth %
-
12.1%
15.9%
12.8%
Source: Statistics Canada, 1996 and Saanich Planning Department * estimates based on
number of dwelling units.
Figure 1 is a profile of population by age group for Tillicum and compared to Saanich and the
Capital Regional District (CRD). The profile shows that Tillicum has a concentration of young
families (0 to 4, 25 to 34) relative to Saanich as a whole and the CRD. This may reflect the
supply of affordable housing in the area. There are also relatively fewer teenagers, and middleaged and older adults in the 45 to 70 year category. Table 1.2 shows the change in the
population profile for Tillicum between 1986 and 1996. The proportion of persons in the 10 to
14, 35 to 54, and over 75 ranges show an increase over the ten years. The most significant
declines were in the 20 to 24 and 55 to 74 age groups.
Population by Age Group
FIGURE 1
25
20
15
10
5
0
0-4
5-9
10 - 14
15 - 19
20 -24
Tillicum
6
25 - 34
35 - 44
Saanich
45 - 54
55 - 64
65 - 74
75+
CRD
Table 1.2
Population by Age Groups, 1986 to 1996
1986
Age Group
1996
#
%
#
%
0-4
5 -9
10 - 14
15 - 19
20 - 24
25 - 34
590
450
360
460
700
1745
7.1
5.4
4.4
5.6
8.5
21.2
625
505
480
440
595
1855
6.8
5.5
5.2
4.7
6.4
20.1
35 - 44
45 - 54
55 - 64
65 - 74
75+
965
730
820
845
580
8245
11.7
8.8
9.9
10.2
7
1660
990
725
685
685
9245
17.9
10.7
7.8
7.4
7.4
Total
Source: Statistics Canada 1986 and 1996
Table 1.3 indicates that average family size is slightly smaller in Tillicum than in Saanich as a
whole. This may reflect the higher proportion of single parent families and the smaller number
of children per family. The average household income for Tillicum is less than for Saanich.
Table 1.3
Household Characteristics
Tillicum
Saanich
Average number of persons per household
Characteristics
2.3
2.5
Average household income
Two parent families with children at home
Single parent families with children at home
Average number of children in family
$42,974
825
33.3%
440
17.8%
0.9
$63,469
12,530
43.6%
3,810
13.3%
1
Source: Statistics Canada 1996
Table 1.4 indicates that there are more residents renting rather than owning homes in Tillicum,
as compared to Saanich.
Table 1.4
Housing Tenure
Tenure
Tillicum Local Area
Saanich
Owned
Rented
63%
37%
73.7%
26.3%
7
Tillicum has a slightly lower labour force participation rate than the average for Saanich and the
province, but higher than for the CRD. The participation rate for females is higher and the rate
for males is lower than the Saanich and region averages.
Table 1.5:
Labour Force Characteristics
Tillicum
Saanich
CRD
BC
Participation
65.1%
65.5%
64.0%
66.0%
Male
68.6%
72.5%
70.0%
-
Female
61.9%
59.0%
59.0%
-
8
2.0
COMMUNITY VISION
The Tillicum Local Area Plan should provide clear policy direction for the near future. This
direction relates to the “vision” of the area developed by its residents. The following provides a
word picture of the character of Tillicum in the future.
Tillicum continues to be a residential community with predominately single family
homes, many of which have been renovated or reflect the historic character of
development from the early 1900’s. There is a mix of housing types including
townhouses, apartments, and duplexes which provide choice to residents. These
developments are primarily near commercial service areas and along the east side
of Tillicum Road and along Burnside Road West. Some seniors-only developments
have been constructed near shopping and transportation amenities which allow for
long time residents to remain in the community when their housing needs change.
The community has attracted young families. This along with the recognition of a
need to care for seniors has created a strong and diverse community. Seniors and
youth programs are provided at the G.R. Pearkes Community Recreation Centre, at
the Les Passmore Seniors’ Centre, and at local community churches.
Open space and the retention and enhancement of wildlife habitat on both public
and private lands are important to Tillicum residents. The Gorge Walkway is
completed and offers a diverse walking environment. Swimming is once again a
summer activity in designated areas of the Gorge. Cuthbert Holmes Park continues
to have a significant role in the community and offers habitat for wildlife and birds.
The Colquitz River riparian area, both within the Park and on private parcels, is
being restored and enhanced to support fish habitat and improve water quality. New
community parks offer passive open space and play-lots for children.
A greenway, including pedestrian and landscape improvements links the Gorge
Waterway and Cuthbert Holmes Park along Dysart Road. Other boulevard and
pedestrian improvements are scattered throughout the community.
Commercial uses along Burnside Road West, and at the Tillicum and Gorge Road
intersection, create urban village centres. These centres focus on meeting day-today needs and encourage residents to walk and bicycle. Tillicum Mall and the
Burnside Plaza area continue to evolve to be more pedestrian friendly with the
inclusion of new multi-family residential and community-scale retail uses, and
improved landscaping. The result is a vibrant commercial retail centre for local
residents.
9
The Tillicum area continues to have good access to Trans Canada Highway, major
roads, and bus routes. Discussions among residents, Ministry of Transportation and
Highways, Provincial Capital Commission and the District of Saanich lead to
acceptance of an integrated design and construction of the Trans Canada Highway/
McKenzie Avenue/Admirals Road intersection. Noise attenuation walls have been
provided along Trans Canada Highway which enhances the visual and walking
environment along Portage Road and Battleford Avenue. Gorge Road has been
maintained as a two-lane roadway with occasional left turn lanes, and Tillicum and
Burnside Roads have had landscape improvements. Admirals Road has been
upgraded to include sidewalks, bicycle lanes, and storm drains.
Residents enjoy a safe and pleasant walking environment with sidewalks on
collector streets that are separated from the travelled portion of the road with treed
boulevards. There are marked and illuminated crosswalks along Gorge and Tillicum
Roads. Bikeways along Admirals, Gorge, Tillicum and Harriet Roads provide
commuter access and linkages with the Galloping Goose Regional Trail. Local
bicycle connectors, offering alternative routes throughout Tillicum, are located along
Portage Road and Colquitz Avenue.
10
3.0
SOCIAL AND CULTURAL SERVICES
Goal: Ensure social and cultural services are adequate for the well-being of the community.
Youth
Youth activities can be assessed at G.R. Pearkes Community Recreation Centre which has a
youth activity centre with drop-ins several nights a week and special events such as dances.
“Coredoor” teen centre is open after school for pre-teens and in the evenings for teens. There
are pool tables, ping-pong, Nintendo, pinball, VCR, TV, basketball, stereo, and activities.
In order to meet the demand throughout the local area, programs for youth are also delivered
through various schools, and seasonally in various park locations. For example, a popular
Friday night floor hockey game for teens (13 – 18 years old) is hosted at Marigold Elementary
School. These services are free or have a nominal charge.
Parents/Families
Tillicum has a high percentage of young families (see Figure 1), characterized by adults 25 – 44
years and children. Programs organized by Saanich Parks and Recreation for families include a
summer playground program at area parks. Parent advisory groups and resident associations
are important sources of input for necessary programs such as babysitting course for teenagers
and safety camp. Additional parenting support programs have been identified as a need for
young adults with children and for families with children 6 – 10 years old.
Through a Healthy Saanich 2000 initiative, and with funding assistance from the Province of
British Columbia and the Queen Alexandra Hospital for Children’s Health, two-family programs
operate out of the G.R. Pearkes Community Recreation Centre. Saanich Neighbourhood Place
provides family support programs for families of preschool age children. Programs include
parenting courses, drop-in activities, clothing exchange and toy library. The Child and Family
Rehabilitation Program of Queen Alexandra Centre for Children’s Health is an outreach program
that offers a care committee for children and youth, and mental health counselling and support
for families.
In general there is a shortage of facilities and it is hoped that the new joint use agreement
between School District #61 and the District of Saanich may provide access to more facilities.
Tillicum residents have access to a number of recreation, leisure, and cultural programs offered
at the G.R. Pearkes Community Recreation Centre. The facility has skating rinks, tennis courts,
a gymnasium, meeting rooms and indoor lawn bowling. Programs are offered for pre-school,
school age children, teens, and adults.
Seniors
Saanich Silver Threads operates the Les Passmore Activity Centre, located on Hampton Road
at Tillicum Road, which offers seniors’ recreation, leisure programs and activities and an
outreach program.
11
There are several seniors-oriented residential complexes in Tillicum. They are located along
Tillicum Road across from Tillicum Mall and close to the Les Passmore Activity Centre. There
are no full service nursing homes or hospitals located in the area, but nearby, in the City of
Victoria. Having a range of alternative housing is important to people as they age and their
housing needs change. It enables them to remain in the area where they have developed social
ties over the years.
Personal Safety
Community policing services are delivered through several programs. Crime prevention through
the Block Watch program includes safety audits, safety checks, and public meetings. Through a
schools program, students have access to police liaison officers at Colquitz and Spectrum
schools. Youth police officers also attend the “Coredoor” youth activity centre at G.R. Pearkes
to interact and develop relationships with local youth with an objective to reducing youth-related
criminal activity. There is also a program to establish “police posts” or mobile temporary police
stations at a local mall or community recreation facility which is currently being researched.
Arts and Culture
Spectrum Community School has a new state-of-the-art theatre and flexible performance space
that was opened in 1996. It is used mostly by neighbourhood schools, but is open to community
groups as well. A joint-use agreement for the theatre between the school board and the
municipality is being negotiated to allow better community access.
POLICIES
3.1
Continue to provide resources through the budget process for the delivery and
administration of programs targeted to families with young children.
3.2
Partner with other agencies to provide resources for the delivery and administration of
family support programs at G.R. Pearkes Community Recreation Centre.
3.3
Increase the provision of community facilities and activity programs for teens with special
emphasis on at-risk youth.
3.4
Support and consider participating in a review of the availability of and demand for
support services for seniors within the Tillicum area.
3.5
Support the development of community arts in the theatre at Spectrum Community
School.
3.6
Support and encourage Community Associations and groups to implement
neighbourhood safety programs such as Block Watch and Emergency Preparedness.
3.7
Encourage resident associations and parent advisory groups to have a consistent role in
determining the need for community services.
12
4.0
HISTORICAL RESOURCES
Goal: Preserve and enhance significant heritage resources.
The area of the Gorge Waterway and Portage Inlet has long had historical significance. It
provided shelter and a food source to indigenous peoples, served as a colonial agricultural area,
and was a recreational destination from the 1890’s to the 1930’s, In 1923, the Gorge Waterway
and Portage Inlet were designated as part of the Victoria Harbour Migratory Bird Sanctuary.
Today, the Waterway and Inlet is the primary open space for surrounding neighbourhoods. A
book titled “The Gorge of Summers Gone” by Dennis Minaker provides a glimpse of the Gorge’s
colourful history.
Gorge neighbourhood was one of the early residential areas in Saanich. The neighbourhood’s
appeal was its proximity to downtown Victoria and the Gorge Waterway. Early subdivision
established a grid pattern of development. Until completion of Trans Canada Highway, Gorge
Road was the main access to up-island communities.
Tillicum has six designated heritage structures and thirty-three inventoried structures of heritage
significance. These structures are located throughout the area with clusters on Colquitz
Avenue, Gorge Road, and Harriet Road (see Map 4.1). Structures of significance include
Brookman Store, Tillicum School, and Craigflower School which is in poor condition and in
urgent need of repair. The heritage homes illustrate a variety of architectural styles including
Craftsman, Edwardian Vernacular, Arts and Crafts, California Bungalow, Tudor Revival,
Moderne and Italianate, and reflect Tillicum’s long history of development.
Exterior changes to designated structures require a Heritage Alternation Permit issued by
Council. All inventoried and designated heritage sites and structures are monitored by the
Saanich Heritage and Archival Committee to ensure alterations are in keeping with the heritage
significance and character.
Saanich has an inventory of heritage and significant trees as permitted under the Local
Government Act. These trees are significant because of heritage, landmark or wildlife habitat
value. The designation of these trees is by adoption of a municipality bylaw under direction of
the Significant Tree Committee with the approval of the owner. Municipal properties with
significant trees include an English elm on the Colquitz Avenue boulevard. Two Sequoia trees
at 384 Gorge Road should be designated.
POLICIES
4.1
Preserve the public visibility of inventoried and designated heritage resources indicated
on Map 4.1.
4.2
Encourage design compatibility when considering rezoning and subdivision applications,
and development permits in the vicinity of heritage structures.
13
14
4.3
Continue to fund and support the Saanich Heritage Foundation in their efforts to promise
the restoration of heritage structures.
4.4
Support the efforts of the Saanich Heritage Advisory and Archival Committee, and the
Saanich Significant Tree Committee to preserve heritage resources in Tillicum.
15
5.0
PUBLIC WORKS
Goal: Coordinate the provision of public works with land use and transportation in an
efficient, cost effective and environmentally sensitive way.
Public works such as sewers, storm drains, and water service are provided by the Municipality.
Other public utilities are provided by BC Hydro (electric power), Telus and Shaw Cable
(communication services), and Terasen Gas (natural gas).
Water servicing is provided to all parcels within Tillicum. Trunk services for water and sewer are
shown on Map 5.1. The entire Tillicum local area, except for a small area along Portage Road,
is included in the Sewer Service Boundary, which defines the area served by the sanitary sewer
system.
Storm drains comprise a combination of pipes, open ditches and natural watercourses, and
discharge into the Colquitz River, Portage Inlet, and Gorge Waterway. Collection and discharge
points for storm drains can be seen in Map 5.1.
Infrastructure Improvements
Infrastructure improvements are the key concern of Tillicum residents. Some services are very
old and deteriorated, as areas of Tillicum are some of the oldest in Saanich, having been
developed in the early 1900’s. Upgrading will be costly and with limited funds, priorities must be
established.
Through a review of the municipal infrastructure requirements, the Engineering Department is
developing a plan for service upgrades and funding options that may include municipal
borrowing, local improvements, and general revenue and specified area charges. Timing of the
work will depend on priorities and available funds. Map 5.2 indicates the Engineering
Department’s priority infrastructure projects identified for Tillicum.
Residents can expedite improvements through application for a Local Improvement Levy
program. This program provides for 50/50 cost sharing between the municipality and those
property owners directly benefitting from the improvement. These charges are generally
amortized over 15 years.
Alternatively, Specified Area Charges can be used to fund infrastructure improvements. The
cost of the improvement is shared between those property owners who are deemed to benefit
from the improvement. Generally, this is determined to be a larger area than a Local
Improvement Levy area. This usually results in a lower cost per parcel, earlier implementation,
and more certainty that the charge collected is spent in the area.
16
17
Sanitary Sewers
The Portage Road area is serviced by on-site disposal systems which is an issue for local
residents. In a 1986 report, the Engineering Department, with the support of a narrow majority
of residents, recommended that the sewer not be extended to service Portage Road. The
reasons were primarily cost, impact on the natural environment, and difficulty of installation.
More recently, there has been renewed interest in reviewing the options and costs of extending
the Sewer Service along Portage Road, particularly as older septic fields reach the limit of their
life cycle. There are, however, no firm plans to sewer the area.
Tillicum has been identified by Engineering and Public Works as one of the first areas which
should be evaluated for sewer main improvements. The age of the system and the infiltration of
stormwater into the sewer mains, are major problems.
The eleven pump stations shown on Map 5.2 need to be upgraded. Capacity and overflow are
serious concerns because of possible environmental impacts. Without an increase in the
annual budget, pump replacement must be implemented over a number of years. The cost to
replace the Dysart pump station, for example, is estimated at $500,000, while the annual
municipal budget is $200,000.
Water Servicing
Water mains must be replaced along several streets (see Map 5.2) at a cost of approximately
$1.1 million. This work is required to ensure adequate water for firefighting, to reduce the
likelihood of service disruption, and to repair damaged pipes.
Storm Drains
The area is served by enclosed storm drains, open ditches and substandard enclosures. The
substandard enclosures were not installed according to engineering standards and many open
ditches are too shallow or too deep. The result is that stormwater infiltrates the sewer lines,
ditches back up, and flooding occurs.
While grassed, open ditches offer environmental benefits such as filtering water (to improve
quality) and slowing running water (reducing erosion and sedimentation) before it enters natural
systems, erosion caused by steep slopes in much of Tillicum makes natural drainage
impractical. As a result, most storm drainage works in Tillicum, as shown on Map 5.2, involve
enclosing open ditches and replacing substandard pipes. Works are estimated at $1.7 million.
POLICIES
5.1
Undertake an Action Plan for the planning, setting of priorities, and identification
of funding mechanisms for infrastructure improvements including sidewalks,
crosswalks, ditch enclosures, stormwater management projects, sewer upgrading
and grease interceptors at outflows (see Policy 6.7).
18
19
5.2
Request the Regional Health Officer to monitor the performance of septic systems along
Portage Road and report to the Director of Engineering Services.
5.3
Review options for sewage disposal along Portage Road, only if the majority of septic
systems fail.
5.4
Complete an environmental impact study for the Portage Road area as part of the review
of sewage disposal options.
5.5
Continue to provide education to residents about their role in improving stormwater
quality and water conservation.
5.6
When undertaking stormwater management projects, also consider streetscape
enhancement, safety, and environment.
20
6.0
ENVIRONMENT
Goal: Identify and protect areas of ecological significance, restore ecologically damaged sites
and enhance the overall health of ecological systems.
Residents of Tillicum highly value environmental features in their community. The Gorge
Waterway and Portage Inlet are part of a designated Federal bird sanctuary. The Colquitz River
systems and Cuthbert Holmes Park are important natural parks. These, and many other natural
features, are included in the Saanich Environmentally Significant Areas Atlas (1999) which
inventories features and identifies sites which require restoration. Inventory information in
Tillicum is shown on Map 6.1. Protection and enhancement of these and other areas are of
interest to local residents and the atlas provides the important first step of knowing where they
are.
The Aquatic Environment
The Gorge Waterway, Portage Inlet and the Colquitz River system are major aquatic features.
The Gorge Waterway and Portage Inlet are tidal waters linked to Victoria Harbour. Portage Inlet
is shallow and has a mud bottom which is exposed at low tide. The Gorge has a constriction in
the area below the Tillicum Road bridge. The waterfall effect of this opening has been reduced
by historic blasting. The Colquitz River is the largest watercourse in Saanich and, like the
Gorge and Portage Inlet, has historically provided important fish habitat.
These features have been the subject of many studies, including the following recent ones:
�
�
Phase I study undertaken by the CRD in 1999, Victoria and Esquimalt Harbours
Ecological Inventory and Rating (HEIR), inventories the intertidal and backshore
areas of the Gorge and Portage Inlet; and
Habitat and restoration feature mapping by Saanich and the Veins of Life
Watershed Society.
All watercourses are protected under the Municipal Watercourse Bylaw which restricts fouling,
obstructing or impeding the flow in watercourses in order to maintain the quality of water and the
rate of flow. As a salmon-bearing river, the Colquitz is also governed by the federal Fisheries
Act. Under the Saanich Zoning Bylaw, no docks, wharves, walls or other structures are
permitted to be built along the shoreline.
In 1969, the Colquitz River land acquisition program was initiated by the District of Saanich.
Most of the land adjacent to the Colquitz River is now municipally owned and zoned for park.
Despite these measures, the water quality and habitat in the aquatic environment is in need of
major restoration. The Gorge-Admirals Road to Gorge View Road has a stone retention wall
installed as a beautification project between 1966 and 1971. Many smaller rock or cement walls
have been built along all the watercourses. Given current knowledge of shoreline ecology, this
type of installation is no longer acceptable.
21
22
Riparian and backshore vegetation plays a vital role in protecting water quality and biodiversity.
As an indication of the importance of the riparian zones, both within parks and on private lands,
consideration should be given to establishing a
development permit area. The Local Government
The riparian zone is the area adjacent to
Act provides Council the authority to establish a
streams, lakes or wetlands, the transition
development permit area (DPA) for the protection of
between water and land. In marine
the natural environment. A DPA would apply to new environments, this may be referred to as
backshore vegetation. In a healthy ecoconstruction, additions and alterations and could
system, the riparian zone is vegetated, often
specify setbacks to protect riparian areas and limit
with plants, shrubs and trees that are distinct
impervious (hard) surfacing to limit surface water
from the surrounding uplands. Riparian
run-off.
zones provide:
Stormwater quality and quantity discharging into
watercourses is an important issue in Tillicum.
Stormwater drains in Tillicum discharge to the
Colquitz River, Gorge waterway and Portage Inlet
allowing pollutants, excess sediments, and scouring
to degrade aquatic environments. Efforts should be
made to increase the water quality of stormwater,
and to reduce the flow reaching watercourses by
encouraging on-site stormwater management.
�pollutant removal through filtering which is
especially important in agricultural areas,
along golf courses and in urban areas
where runoff contains high levels of
sediment and nutrients;
�shade for the stream which keeps water
cool in the summer;
�large woody debris in the stream;
�stream channel stabilization;
�water, cover and food for animals,
including invertebrates, birds and fish;
�movement corridors for wildlife; and
�areas of high biodiversity.
The watersheds for these systems extend far
beyond the Tillicum local area boundaries. This
means that while activities in Tillicum can be
managed to protect these resources, partnerships should be struck with neighbouring
jurisdictions to ensure the aquatic environment is managed on a watershed basis. This is the
approach of the Veins of Life Watershed Society which has been responsible for major clean up
efforts along the Gorge. Overall, community education, which is the foundation to
understanding and protecting aquatic and terrestrial environments from the many threats, is
essential.
The Terrestrial Environment
Native trees, shrubs, flowers, and grasses are important to the environment as they provide a
key component to biodiversity. Garry oak meadows, rock outcrops, and conifer forests can be
found in Tillicum. Less common is the grand fir-Garry oak association sometimes found on the
forest edge.
Tillicum has significant areas of natural vegetation, most of which are within Cuthbert Holmes
natural park and Gorge Park. In addition, the low density development and large lot sizes in the
rights-of-way west of Admirals Road result in a highly vegetated area.
Tillicum has historically provided important nesting habitat for the Great Blue Heron and may
continue to do so. Loss of nesting habitat for the herons is becoming a provincial concern.
23
POLICIES
6.1
Protect and enhance indigenous vegetation, wildlife habitat, and riparian environments
as much as possible when considering applications for changes in land use.
6.2
Preserve indigenous trees, shrubs, plants, and rock outcroppings as much as possible
within parks, boulevards, unconstructed road rights-of-way, and other public lands.
6.3
When possible, negotiate a minimum 3.0 m protective easement along the riparian
boundaries of properties which abut Portage Inlet and Colquitz River to retain or restore
the shoreline areas to a natural state.
6.4
Use development permit legislation to:
a)
b)
c)
d)
e)
establish new development permit areas for riparian areas of the Colquitz River,
and Gorge Waterway foreshore to protect environmentally sensitive areas (see
Section 13);
amend the Portage Road Development Permit area to include all parcels fronting
Portage Inlet;
amend the 15 m building setback in the Portage Road Development Permit Area
only after consultation with affected property owners and Residents’ Association;
propose riparian setbacks in development permit areas that take into account
existing building locations and developments; and
consider restricting future redevelopment to existing building footprints.
6.5
Develop and implement a riparian, foreshore, and bank restoration plan for the Colquitz
River, Portage Inlet and the Gorge Waterway in partnership with the community, schools
and universities, and other government agencies based on the Environmentally
Significant Areas Inventory.
6.6
Develop an environmental education program with the community, industry, institutions,
and schools to:
a)
reduce non-point pollution flowing into the Colquitz River system;
b)
increase understanding of the importance of riparian vegetation;
c)
increase awareness of the need to protect important plant communities and
wildlife habitat; and
d)
increase the awareness of the sensitivity of the Great Blue Heron nesting and
feeding areas within the Victoria Harbour Migratory Bird Sanctuary.
6.7
Consider grease interceptors at storm drainage outflows to reduce pollutants accessing
the Gorge Waterway, Colquitz River, and Portage Inlet through the Action Plan process
for infrastructure improvements (see Policy 5.1).
6.8
Support the stormwater monitoring program undertaken by Veins of Life Watershed
Society and Tillicum Gorge Community Association.
24
7.0
HOUSING
Goal: Provide a range of housing types to meet the needs of residents while maintaining local
area character and enhancing liveability.
Tillicum is a desirable residential area due to its attractive natural features like Portage Inlet and
the Gorge Waterway, its proximity to downtown Victoria and key transportation corridors, and
the convenience of regional shopping and recreation facilities. It offers a range of housing types
including single family homes, duplexes, townhouses, and apartments (see Map 7.1) and a
large number of heritage and character homes.
While all of Tillicum has been developed, some redevelopment for multi-family dwellings and
single family infill are expected. In the short term, sites with multi-family potential are described
on page 23 (see Map 7.2). In the long term, the regional growth strategy proposes one growth
option that has higher residential densities within “urban villages”. The Community Workshop
reinforced this concept and identified three possible nodes (see Map 10.1 and Section 10).
Table 7.1:
Inventory of Residential Parcels and Dwelling Units
Residential Zones
Zoned Parcels
Dwelling Units
#
%
#
%
Single family
2350
96%
2350
60%
Two-family
Multi-family
Total
56
39
2445
2%
2%
100%
112
1435
3897
3%
37%
100%
Source: Saanich Permit Plan Data, 1998
An inventory of residential zoned parcels and dwelling units based on 1998 municipal zoning
information is shown in Table 7.1. The dominant residential parcel and dwelling type is single
family with 96% of the parcels and 60% of dwelling units. Two-family dwellings account for 3%
of dwelling units, while townhouses and apartments account for 37%.
A comparison of housing types in Tillicum, Saanich and the Capital Region is shown in Figure 7.
Tillicum has a larger proportion of multi-family residential than Saanich, more in line with the
CRD as a whole, but a smaller percentage of two-family dwellings. Tillicum also has relatively
more single family dwellings than the CRD, but fewer than Saanich.
Single Family Housing
There are few opportunities for new lots to be created for single family homes. Large lots on
Portage Road can only be subdivided if serviced by municipal sewers, and there is no support
to extend service at this time. Along Dysart, Austin, and Colquitz Roads there are large lots that
could be consolidated and subdivided to create additional lots or panhandle lots which would
alter these streetscapes. As panhandle applications require a 10% variance for lot frontage
from Council, an opportunity would be provided for public input and Council would have the right
to deny the variance.
25
26
Rather than through subdivision, it is more likely that single family development will occur
through redevelopment of lots by demolition and rebuilding or through extensive renovations
and additions. Replacement homes may be built to the maximum allowed by the Zoning Bylaw
which may be larger than what exists. New homes may also be designed out of character with
existing dwellings. This is a concern of those who wish to retain neighbourhood character.
Through the Local Government Act, the municipality can regulate dwelling height and mass, but
has no mechanism to ensure that the design of new homes is compatible with surrounding
dwellings.
FIGURE 2: Housing Comparison
70
60
50
40
30
20
10
0
Two Family
Single Family
Tillicum
Saanich
Mulit-Family
CRD
Two-Family Housing
Two-family dwellings are governed by Policies 6.5 and 6.6 of the Saanich General Plan which
require:
�
�
�
a larger lot than adjacent zoning (1.3 times);
a slightly wider lot than adjacent zoning (20 m or 1.3 times);
consideration of neighbourhood context and lot size, and building scale and design,
access, and parking.
Two-family dwellings can provide a more efficient use of a limited land resource, and welldesigned units with adequate off-street parking can be compatible with single family dwellings.
There are many lots in the western part of Tillicum that meet the lot area criteria, but only a
limited number of lots that meet both the lot area and width criteria for two-family dwellings.
Neighbourhood context, the quality of the proposal, and community support will impact the
acceptance of two-family development. A parcel must be rezoned and a development permit
approved before a two-family dwelling can be constructed. This process provides an
opportunity for the neighbourhood to review the proposal and to express its support or concerns
to Council. The advantage of two-family dwelling applications is that architecture, site planning
and landscaping can be regulated through the development permit process and the community
is afforded an opportunity to consider neighbourhood impact.
27
Multi-Family Housing
Tillicum’s stock of townhouses and multi-storey apartments contribute to a diversity of housing
for its residents, an important element of complete communities2. Multi-family dwellings offer an
alternative, and often more affordable, form of housing for those who choose or are not able to
maintain a single family lot. In Tillicum, multi-family developments are clustered along the
Gorge Road between Harriet and Millgrove, on Burnside east of Harriet, and along Whittier
Avenue. The Capital Region Housing Corporation and other non-profit societies manage
subsidized housing units for low income residents.
In general, the approach has been to encourage multi-family housing near service centres. This
places the greatest densities closest to shopping, offices, entertainment and transit. In theory,
this approach is symbiotic as the residents support the services and the services support the
residents and there is greater efficiency in the use of infrastructure such as roads and public
transit. In practice, however, this relationship can be negatively impacted by roadways that
divide rather than link important destinations. In the case of Tillicum Road, for example, many
residents find it difficult to cross safely to access the shopping area and have requested this be
given special attention (see Mobility section and Policy 9.13).
Sites having multi-family potential were identified in the 1989 Local Area Plan. Since then
redevelopment to multi-family use has occurred on some sites while others have seen no
activity. Five sites have been identified as having multi-family potential (see Map 7.2). The
sites are described below and guidelines for redevelopment are outlined in Table 7.2.
Site 1: Tillicum Road West
There have been no applications received for multi-family rezoning since the
site was originally designated, perhaps due to market cycles. The area
continues to have multi-family potential and there have been recent enquiries.
The proximity to roads, transit, and commercial amenities makes this area
suitable for multi-family consideration.
Site 2: Tillicum Road East
There has been some redevelopment to multi-family since the last plan. The
proximity to services and access to roadways, transit and bikeways continues to
make this site suitable for multi-family uses.
Site 3: Obed South
Several properties designated for multi-family development have not
proceeded. The lots south of Obed Avenue between Albina Street and Orillia
Street represent the largest site available. Other sites are scattered on
Millgrove Street, Gorge Road, and between Qu’Appelle Street and Harriet
Avenue to the south of Obed Avenue.
The lots south of Obed Avenue between Albina Street and Orillia Street provide
a transition between single family uses to the east and commercial uses to the
west. The redevelopment of the other scattered potential multi-family sites
would complete multi-family redevelopment and address isolated parcels.
2A
complete community provides residents with housing and lifestyle choices, so they can age in place
without having to move from the neighbourhood at a critical stage in their lives.
28
Site 4: Little Eldon
Several of the sites in the area have redeveloped to multi-family use. The
parcel at 278/280 Burnside Road East is zoned for a two-family dwelling. It is
unlikely that this site could be redeveloped to a multi-family use.
The lots at the corner of Burnside Road and Dupplin Road continue to be
suitable for multi-family development as they provide a transition from industrial
uses to the east and single family uses to the west. A comprehensive
development plan is required to ensure that individual parcels are not isolated.
One development has been completed on the south end of Whittier Avenue
and one mid-block. The intent is to protect the character of the street including
the identified heritage dwelling which is undergoing renovation. This requires
the preservation of some of the single family dwellings, while carefully
providing for some multi-family development.
Site 5: Burnside/Tillicum
This site, on the northwest corner of Burnside and Tillicum Roads intersection,
is owned by the Municipality and includes all nine parcels in the block. The
site can be accessed off Burnside or Hampton Road.
A well designed multi-family structure at this corner would be supportable due
to the proximity to a variety of commercial and leisure services (i.e. Les
Passmore Seniors Centre) and public transit. Massing and scale will be a
concern to ensure that a building is not out of scale in the neighbourhood.
Table 7.2:
Multi-Family Development Guidelines
Site
Guidelines
Site 1
�
�
�
�
�
Site 2
� continue the pattern of three and four storeys fronting Tillicum and two and three storeys fronting
Albina respecting topography
� step down buildings and encourage underground parking
� encourage internal access connections throughout block
� encourage access away from Tillicum where possible
� encourage consolidation to avoid isolated parcels or undevelopable land packages
� apartment redevelopment potential
� do not support balcony encroachments on Tillicum setback
� consideration of utility corridor
� encourage tree planting for boulevard and privacy screens for rear yards
� on Albina, heights should relate to single family opposite due to topography
� on Albina, emphasize ground oriented housing to mirror opposite
Site 3
� maximum density of 1.2 FSR* for lots adjacent to commercial and 1.0 FSR for those adjacent to
residential is recommended
� potential for two storeys on Obed graduating to three to four storeys moving south
� roof lines and massing should reflect single family character on Obed
� consider underground parking
� explore potential for additional shopping centre parking
maximum height two to three storeys, preferring small-scale residential that steps down to the west
a 3 m landscaped buffer strip should be provided against residential properties to the west
access is preferred from residential streets instead of Tillicum
prefer pitched roofs and variations in roof lines
special consideration for topography especially in central portion where elevations will impact
visibility
29
� preferred access away from Tillicum and Gorge Roads
� encourage pitched roofs and designing with topography to set projects into the ground
Site 4
�
�
�
�
sensitive transition of height, design, and buffering between single family and potential multi-family
ground oriented housing preferred
consider apartments adjacent to existing multi-family on the southern parcels
pedestrian access issues to Rudd Park
Site 5
�
�
�
�
�
�
�
�
mixed residential use
a mix of two or three storeys
under building parking may be acceptable
pedestrian access to and through the site
parking for Hampton Seniors Centre must be addressed
preferred access from Hampton/Albina
development fronting Albina should relate to and enhance the street
improve Tillicum and Burnside streetscape by planting street trees
* FSR = floor space ration ( see definitions)
Estimated Population/Housing Growth
An estimate of the number of new dwelling units is shown in Table 7.3. Most of the growth is
expected to come from multi-family development. Any increases in single family development
would likely be offset by losses due to demolition for multi-family or park expansion. The
estimated 500 multi-family dwellings would be built out over a long period of time depending on
market process and the rezoning process. Many of the potential multi-family sites have been
carried forward from the 1989 plan which could indicate that the market/economics for
redevelopment have not been favourable.
Dwelling Type
Table 7.3:
Estimated Growth in Housing Units and Population
Potential
Units 1998
%
Total Units
New Units
%
Growth
Single family
2350
60.3%
0
2350
53.4%
0
Multi-family *
1547
39.7%
500
2047
46.6%
32.3%
Total
3897
100%
500
4397
100%
12.8%
Population **
10917
12312
Source: Saanich Permit Plan 1998
* includes two-family
** population estimate at 2.8 persons per household (Statistics Canada)
30
31
POLICIES
7.1
Protect and retain the stability and character of Tillicum by maintaining single family as
the predominant residential land use.
7.2
Minimize the impact to the environment on the Portage Inlet by:
a)
Retaining A-1 zoning along the north shore of Portage Inlet.
b)
Maintaining single family dwelling zoning and standard lot sizes of 930 m2 along
Portage Inlet south of the Colquitz River.
Maintaining a minimum lot size for panhandle lots of 1,300 m2 along Portage Inlet
south of the Colquitz River.
c)
7.3
Consider rezoning for multi-family use those sites identified on Map 7.2.
7.4
Apply the development guidelines identified in Table 7.2 when considering rezoning and
/or development permit applications for multi-family use.
7.5
Do not support rezoning applications for multi-family development along the Gorge
Waterway west between Tillicum and Admirals Road except as described in Policy 7.6 in
conjunction with residents and the community association.
7.6
Examine residential densities in the Burnside-Harriet and Gorge-Tillicum areas in
support of the “urban village” concept as part of the Action Plans for Tillicum
Road and Burnside Road (see Policies 9.3, 9.4, and 10.3).
7.7
Encourage multi-family development to provide community amenities.
7.8
Encourage the consolidation of properties between Tillicum Road and Albina Street in
order to develop double frontage lots and to avoid isolating individual lots or
undevelopable land packages.
7.9
Minimize congestion on Tillicum Road between Maddock Avenue and Obed Avenue by
promoting access and egress from residential streets.
7.10
Promote coordinated internal access between independent developments by use of
reciprocal access agreements.
7.11
Continue to discourage multi-family access to Albina Street between Maddock Avenue
and Burnside Road.
7.12
Emphasize development of small-scale apartment or ground oriented housing on the
west side of Albina Street between Maddock Avenue and Obed Avenue to reflect the
existing type and scale of development.
7.13
Initiate a street tree planting program for the area between Battleford Avenue, Burnside
Road, Tillicum Road and Harriet Road through the Parks and Public Works Department,
in conjunction with area residents and the community association.
32
7.14
Support an application to rezone 2986 Dysart from C-1 commercial to an appropriate
residential zone.
7.15
Ensure future development and redevelopment conforms with the Tillicum-Burnside
Streetscape Action Plan.
33
8.0
OPEN SPACE, PARKS AND TRAILS
Goal: Protect and enhance the system of parks, open spaces, and trails for the benefit of
residents.
Tillicum is unique in that much of it is surrounded by water with the Colquitz River to the north,
Portage Inlet to the west, and the Gorge Waterway to the south. Municipal parks including
Cuthbert Holmes Park, which buffers the Colquitz River and the linear Gorge Waterway Park,
ensure access to this prominent water feature.
Tillicum has a hierarchy of parks which include municipal, community, and neighbourhood as
shown in Table 8.1. Parks with playground equipment include Craigflower, Rudd, Qu’Appelle,
Meadow, and Hampton. Hampton is also a playing field park with facilities for soccer and
baseball.
Cuthbert Holmes Park is part of the Colquitz Regional Park system (see Map 8.2). Several
footbridges cross the Colquitz River and trails through the park connect to Tillicum Mall, G.R.
Pearkes Community Recreation Centre, Dysart Road and Admirals Road. There is a
connection along Interurban Road under Trans Canada Highway which links north to the
Galloping Goose Trail and connects with the Colquitz Regional Trail on Carey. Gorge Park has
several trails linking Tillicum Road and Gorge Road, and an easement has been established to
connect the park with Harriet Road.
A small portion of Cuthbert Holmes Park is designated as Agricultural Land Reserve. There is
no intention of allowing agricultural uses on these lands: the lands are owned or leased by
Saanich and zoned “Natural Park”, which offers protection for continued park use.
Acquisition Priorities
The Parks Priority Study (1994) identifies municipal standards for parks and open spaces by
type of park. Tillicum parks are close to meeting the overall standard of 5.0 hectares per 1000
people with 4.8 ha/1000 persons. There is a noticeable deficiency in neighbourhood parks:
there are 0.6 versus the municipality standard of 1.2 ha per 1000. Although some of this
deficiency is made up for with the provision of Municipal parks, there remains a need for
neighbourhood parks and the facilities and function that they offer.
Four park development cost charge areas have been established for Tillicum to provide funds
toward the acquisition and development of neighbourhood and community parks. Both Meadow
and Qu’Appelle neighbourhood parks are identified for future expansion through land
acquisitions. The proposed expansion of these parks would help to offset the deficiency in
neighbourhood parks in the area. There is also a Saanich wide development cost charge for
the funding of municipal parks. Additional lands along the Gorge Waterway and adjacent to
Cuthbert Holmes Park have been identified for proposed acquisitions (see Map 8.1).
34
35
Table 8.1:
Tillicum Park Summary
Park
Size (ha)
Acquisition
Function
Neighbourhood Parks
Craigflower Elementary
0.645
Structured athletic, unstructured recreation
Hampton Elementary
0.945
Meadow
0.702
0.27
Basketball/hockey court, playground, field
house
Qu’Appelle
0.321
0.11
Playground, basketball court
Rudd
1.865
Tillicum Elementary
Total neighbourhood parks
Ball field, soccer field, playground, field
house, basketball court
1.1
5.578
Community Parks
Hampton
4.217
Tennis courts (2), ball field, playground,
soccer fields (2), basketball court, lawn
bowling, change rooms, Silver Thread
Centre
Tillicum
6.14
Natural, G.R. Pearkes Community
Recreation Centre
Total community parks
10.357
Municipal Parks
Colquitz River
0.33
Natural
Craigflower
1.07
Playground, historical schoolhouse and
grounds
Cuthbert Holmes
19.625
Gorge
4.64
Gorge Waterway
2.586
Total Municipal parks
28.251
Total Parks
0.33
Natural
Natural, horticultural
0.11
Horticultural, unstructured recreations,
special/rental houses
44.186 *
* Total parks per 1000 persons based on population of 9,245 is 4.8 ha/1000 persons.
36
Park Development
The community is particularly interested in the completion of the Gorge Waterway Park between
Gorge View Drive and Tillicum Road Bridge. Currently the land is occupied by Saanich owned
rental dwellings.
Saanich Parks and Public Works Department undertook a Gorge Waterway Park Concept Plan
that was approved by Council on January 24, 2000. Protection of the foreshore is a primary
goal of both the community and the municipality. A key issue is the Saanich owned rental
dwellings in the area. Two of the dwellings are inventoried heritage structures. The Victoria
Canoe and Kayak Club leases one of the buildings and surrounding land. The Municipality has
recently reconstructed a promenade deck in front of the Club building that invites public access
in addition to club use. The other heritage building may be usable for municipal/park use.
Phase 1 of the plan calls for the demolition of six buildings in 2000.
Consideration should also be given to providing a pathway extension under the Tillicum Road
Bridge to facilitate crossing Tillicum Road. This would provide a connection between the Gorge
Park and Gorge Waterway Park, and a connection to the 3.0 m easement along the Gorge from
Harriet Road to Gorge Park. However, sufficient land is not available to build a pathway through
this area unless it can be cantilevered. The long term goal remains to extend the path in the
easement area to create a continuous pathway along the Gorge Waterway between Harriet
Road and Admirals Road and to connect with a pathway proposed by the City of Victoria.
There is also community interest in supporting wildlife values in Cuthbert Holmes Park. One
suggestion from the community is to develop a dense vegetative buffer in the area between the
Trans Canada Highway and the park. Consultation should include the Ministry of Highways, as
much of this area is road right-of-way.
Greenways and Trails
The Greenways goal in Tillicum is to combine environmental
and recreational objectives to link natural areas and provide
passive recreational enjoyment of these areas.
Important destinations include shoreline access points,
recreation centres, parks and school sites, and commercial
sites. Greenway connections that should be developed are
identified in Map 8.2. A key north-south link on Dysart Road
ties the Cuthbert Holmes Park trails to Meadow Park and
south to the Gorge Waterway. A key east-west route runs
along Obed Avenue. Other important routes are along
Portage Road providing a link with Cuthbert Holmes Park
and the Galloping Goose via the pedestrian overpass, and
between Tillicum and View Royal.
Greenways are linear green
corridors that link natural areas,
scenic views, coastal areas, parks
and important destinations.
Greenways can be on both public
and private land and may include
remnant natural areas, beaches,
pathways, streets, and bikeways.
They provide opportunities for
wildlife habitat, outdoor recreation,
and enhance the experience of
nature in the city. The purpose
behind developing greenways is to
extend green corridors across the
area and establish a foundation for
the greening of the community.
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Greenway projects include boulevard tree planting and improvements to the pedestrian
environment. In addition, public accesses to the waterfront, at the end of road rights-of-way at
Portage Inlet, are important features in the Greenway system.
Scenic Access
In 1984, Saanich endorsed the Scenic Access Corridor Study. This study established both
general and specific policies for scenic access along Pat Bay and Trans Canada Highways.
The study identifies the views of Portage Inlet along with key stands of trees to be significant
scenic elements along the portion of the Trans Canada Highway within Tillicum. The study
includes policies for:
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landscape screen improvements in the Portage Road area to screen houses
from the visual and noise impacts of the highway;
improved lighting at Admirals Road/Trans Canada Highway intersection;
maintaining natural vegetation in Cuthbert Holmes Park;
tree planting along Trans Canada Highway between Burnside and Tillicum
Roads;
landscape planting on southeast corner of the Tillicum Road/Trans Canada
Highway intersection; and
landscape improvements along Battleford Avenue.
POLICIES
8.1
Acquire and reserve land for neighbourhood and municipal parks as shown on Map 8.1.
8.2
Convert the Saanich owned parcels in the Gorge Walkway from residential use to park
by:
a)
b)
providing funding to implement the Gorge Waterway extension plan as soon as
possible.
beginning park planning discussions with adjacent municipalities to ensure park
continuity between jurisdictions.
8.3
Endorse the Greenways concept as identified on Map 8.2.
8.4
Budget for improvements to the pedestrian and natural environment of designated
Greenways.
8.5
Link designated Greenways to those in other neighbourhoods within Saanich and with
those in adjacent municipalities.
8.6
Retain unconstructed road rights-of-way for public open space to provide waterfront
access, informal open spaces, greenway/trail linkages and protection of foreshore areas.
8.7
Petition the Province to raise title to the unconstructed road rights-of-way as shown on
Map 8.1, and zone for use as “park” or “natural park” as appropriate.
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8.8
Support the long term development of a pedestrian access from Gorge Park to Harriet
Road to connect with the pedestrian pathway proposed by the City of Victoria.
8.9
Continue to work with the Ministry of Transportation and Highways and the Provincial
Capital Commission to implement the policies of the Scenic Access Corridor Study with
particular attention to mitigating noise and visual disturbance along Portage Road.
8.10
Undertake an evaluation of noise attenuation options including the “green wall” concept
along Battleford Avenue in accordance with the Scenic Access Corridor Study and
undertake a program of implementation.
8.11
Support the ongoing leasing of municipal property by the Victoria Canoe and Kayak
Club.
8.12
Enhance the wildlife values of Cuthbert Holmes Park by creating a dense vegetation
buffer between the park and Trans Canada Highway.
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9.0
MOBILITY
Goal: Provide an aesthetic, convenient, and safe mobility network that balances motor vehicle,
pedestrian, transit, cyclist, and resident needs.
Mobility addresses all modes of travel including pedestrian, bicycle, transit, and motor vehicle.
Communities are increasingly concerned about the impact of private vehicle travel and are
looking for ways to reduce this dependence. A convenient pedestrian, cyclist and transit
network is required if residents are to have the option to choose alternative modes.
The Saanich Road Network is identified in the Saanich General Plan. Roads are designated as
arterial highways and major, collector and residential roads and are a part of the larger regional
system. The road network in Tillicum has been influenced by geography, the pattern of
development, and access limitations to Trans Canada Highway. The network can be seen on
Map 9.1.
Motor Vehicle Issues
The overall design, streetscape and function of Tillicum Road and Burnside Avenue are key
issues for Tillicum residents. These are major transportation corridors in Tillicum, linking to
commercial nodes and key locations outside of the local area. Residents’ concerns include
vehicle speed and pedestrian safety. There are also concerns for the significant contribution
these major roads make to the character of Tillicum and a vital business environment. A
redesign project would require a multi-faceted approach and consideration for a variety of
issues including streetscape, traffic flow, and pedestrian environment and safety, landscaping,
land use and servicing. Consideration should also be given to how these roads function within
an “urban village” (see Commercial section, page 48).
Trans Canada Highway is the primary east-west route that links the western communities and
up-island locations with Victoria locations. It is designated as an arterial highway, under the
jurisdiction of the Ministry of Transportation and Highways (MOTH). Access to the highway is
limited and there are few residential parcels that lie adjacent to the highway. The highway is
linked to the Tillicum area by Admirals Road, Burnside Road, and Tillicum Road.
The Province has been engaged in the Island Highway Project for the past 12 years or more.
The Helmcken Road interchange was recently completed to provide uninterrupted east-west
flow. While MOTH has long term plans to upgrade the intersection of McKenzie Avenue/
Admirals Road, the community regards this as a priority issue which should be resolved as
quickly as possible. Some residents in the community strongly support improvements as it will
facilitate the flow of traffic between Admirals Road, Trans Canada Highway and McKenzie
Avenue. Other residents are concerned about the possible impact on adjacent residential areas
and Cuthbert Holmes Park. Discussions on the detailed design should address protection of the
quality of life of residents near the interchange through the provision of noise attenuation and
landscaping. At the same time, there should be coordination between MOTH and Saanich to
address the link with Admirals Road and its maintenance as a two-lane road.
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The homes along Portage Road and Battleford Avenue are separated from Trans Canada
Highway by the frontage road. Traffic noise, safety and aesthetics are concerns for local
residents. Solutions could include a sound and visual barrier such as a “green wall”.
Discussions between MOTH and affected residents are needed to address impacts and
mitigation.
Several Tillicum rights-of-way have been identified by the Engineering Department for capital
road works. They include:
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Admirals/McKenzie intersection – north bound Admirals, left turn lane, median
modifications to improve left turn storage capacity;
Burnside/Harriet intersection – widening West Burnside to accommodate
exclusive left turns;
Trans Canada Highway/Admirals-McKenzie intersection – with MOTH;
Tillicum/Arena Way intersection – cul-de-sac Ker; and
road resurfacing – Tillicum from Gorge bridge to Arena Way, Burnside from
Dupplin to Interurban, Harriet from Burnside to Gorge.
Another issue is the restricted access between Bodega Road and the G.R. Pearkes Community
Recreation Centre/Tillicum Centre. This was intended to discourage short-cutting traffic,
however, it has forced local residents to use a circuitous route between their homes and the
shopping mall/recreation centre. This should be reconsidered.
Neighbourhood Traffic Management
In addition to serving motor vehicle traffic, streets shape the character of neighbourhoods,
account for a large proportion of publically owned land, support community social space, and
provide corridors for landscaping. Safety and quality of life concerns arise with issues of traffic
volumes and speed.
There have been concerns from residents about speeding traffic and heavy volumes on
residential streets (see Figure 3). Motorists will sometimes short-cut through a residential area
to save time or avoid lights. Where traffic speed or volume is jeopardizing the safety and
liveability of a neighbourhood, residents can apply to the District of Saanich to undertake a
traffic calming project. The group of interested residents can work with Saanich staff to
identify problems and possible solutions. The scope of the project will be large enough to
ensure that traffic is not displaced to another residential street. For more information on traffic
calming in Saanich, residents can contact the Engineering Department.
Bicycle Facilities
Designated commuter bikeways are identified on Map 9.2. These routes are intended to
provide a network of convenient direct linkages for commuter cyclists including connections to
major regional destinations, such as Tillicum Centre, Saanich core, downtown Victoria and
Esquimalt.
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Figure 3:
Community Transportation Issues
The following transportation issues were raised by residents throughout the
planning process:
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the safety of the Colquitz-Admirals intersection;
the intersection of Cowper and Colquitz. This intersection is offset and residents are concerned about safety particularly if it is to
be designated as a local bicycle connector;
Tillicum and Burnside should be reduced to two lanes with a
centre turn lane and landscaped median with safe pedestrian
refuges and crossings;
Tillicum and Burnside Roads are eyesores;
speeding vehicles on Gorge Road;
lack of crosswalks over Gorge Road;
crosswalk needed at 190 Gorge Road to access bus stop;
speeding vehicles on Obed and the lack of pedestrian safety
short-cutting traffic on Maddock between Harriet and Tillicum to
avoid traffic light at Tillicum;
traffic calming by the City of Victoria at Maddock East causing
concerns on Logan and Maddock West;
short-cutting traffic on Regina fronting Hampton School
trucks coming up Burnside cannot turn left on Harriet are using
residential streets;
traffic calming is needed at Ker and Tillicum; mall traffic should
be monitored;
road closure at Sims and Tillicum needs to be cleaned up;
sidewalk on Battleford is blocked by dirt and needs clean up;
heavy traffic on Admirals makes it difficult to access private
driveways;
Portage and Colquitz are not suitable for bike connectors;
the pedestrian crossing at Obed and Tillicum;
poor condition or lack of sidewalks on Admirals;
the lack of bicycle facilities;
the general lack of sidewalks;
sidewalks needed on Dysart, Bodega, Obed and Admirals;
poor streetscapes;
road improvements are needed to Whittier to accommodate onstreet parking and make use of 30 foot municipal boulevard;
lack of sidewalks accessing schools;
speeding traffic around Hampton school;
lack of disabled access bus stops;
lack of bus stop seating and shelters.
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There are no developed commuter bikeways in Tillicum area. Improvements to the bicycling
network could begin on Gorge Road, where there is sufficient pavement west of Tillicum Road
to accommodate two bike lanes and two travel lanes. Designated routes on Admirals, Tillicum,
Burnside, and Harriet would require road widening. As a general rule, all residential streets
should be bicycle friendly; however, local connector routes are often designated to show
preferred routes within neighbourhoods. Tillicum’s proposed local bicycle connectors are shown
on Map 9.2.
Pedestrian Facilities
An efficient and pleasant pedestrian environment is important to encourage walking, create a
sense of community, and reduce reliance on motor vehicles. The type and quality of sidewalks
varies with anticipated use, type of roadway, and budgets, and ranges from concrete sidewalks
to asphalt paths or paved shoulders. Existing sidewalks by type are shown on Map 9.3.
Pedestrian safety rates highly as a community concern (see Resident Survey in Appendix). The
lack of sidewalks and poor pedestrian environments are identified as major problems. Some
key concerns are the poor quality asphalt sidewalks on Admirals Road, and the lack of sidewalk
on Obed Avenue between Tillicum and Harriet. Community priorities for sidewalk installations,
or improvements, are shown on Map 9.3.
Sidewalk installations or improvements are managed through the Engineering Department’s
Capital Works budgeting program. Engineering specifications require sidewalks on collector
streets, major roads, and residential streets designated as “safe routes to school”. Sidewalks
can also be required of developers as part of a subdivision or development permit, and by the
Municipality as part of a road upgrading project. Residents may also petition for a Local
Improvement Levy for sidewalk construction.
There is a general concern for the lack of sidewalks accessing schools. Hampton Elementary
School specifically noted that the underpass at Seaton Street is undesirable and should be
replaced with an overpass.
There are also community concerns for safe crossings at Obed-Tillicum and at points along
Gorge Road. This is also a concern for BC Transit who feel a transit/pedestrian activated traffic
signal would enhance bus operation and improve pedestrian safety. The general need for safe
crossings over major roads by children accessing schools and parks is a concern. Community
priorities for safe crossings are shown on Map 9.3.
Saanich Council’s “Safe Route to School” policy sets out a process for sidewalks on routes to
elementary schools. It requires that safe routes be identified by school administrators and
parents’ groups. Sidewalk and other safety priorities are then evaluated by the Engineering
Department. Consideration will also be given to improving safety on walking routes to
secondary school that are identified by school officials and parents’ groups.
There have been privacy concerns expressed by some residents living adjacent to proposed
walkways at the time of subdivision (such as those going through at the end of a cul-de-sac).
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Walkways are an important element of an efficient pedestrian network and the long term benefit
to the community as a whole outweighs the immediate concern of individual property owners.
Public walkways in subdivision and development proposals should be supported in the future,
with sensitivity to adjacent property owners, in terms of design.
Transit Service
As with cycling and walking, the use of transit is an important element in reducing vehicular
traffic and the related social and environmental problems. The Tillicum area is relatively wellserved by public transit, however, over the long term improvements to roads and pedestrian
accessibility are needed. Transit routes, bus stops and their accessibility are illustrated on Map
9.4. Planned expansions include the 24 Colville/Cedar Hill route from Admiral’s Walk in
Esquimalt to Tillicum Mall.
There is long term regional transportation plans to develop a light rail transit system in the
Greater Victoria area. The Victoria Light Rail Transit Plan proposes use of part of the
abandoned rail right-of-way along Trans Canada Highway. The system would share the rightof-way with the Galloping Goose Regional Trail. Two stations, which would service Tillicum, are
proposed at Interurban Road and at McKenzie Avenue.
POLICIES
9.1
Adopt the traffic circulation network and road classifications as shown on Map 9.1.
9.2
Evaluate the community request to maintain a standard of two travelling lanes on
Admirals and Harriet Road south of Burnside Road West, except at selected locations
where an extra lane may be necessary to accommodate turning movements.
9.3
Undertake an Action Plan for Tillicum Road from Trans Canada Highway to Gorge
Bridge which considers land use, pedestrian environment, landscaping,
streetscape design, cycling facilities, transit service/facilities, and the role of the
street as a primary north-south transportation route (see Policies 7.6 and 10.3).
9.4
Undertake an Action Plan for Burnside Road from the City of Victoria to Trans
Canada Highway, including Tillicum Mall and Burnside Plaza, which considers
land use, pedestrian environment, landscaping, streetscape design, cycling
facilities, transit service/facilities, and the role of the street as a primary east-west
transportation route (see Policies 7.6 and 10.3).
9.5
Upgrade Albina Street, in conjunction with redevelopment, to provide two lanes of traffic
and one lane of parking along the west side of the street.
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9.6
Continue to endorse the Scenic Access Corridor concept along Trans Canada Highway
by:
a)
b)
c)
participating in funding for a final phase right-of-way beautification program from
Douglas Street to Tillicum Road;
requiring a high standard of landscape design; and
cooperating with the Ministry of Transportation and Highways toward upgrading
the highway boulevards and medians, especially noise attenuation features.
9.7
Continue to work with the Ministry of Transportation and Highways on upgrades for
Trans Canada Highway (particularly McKenzie Avenue/Admirals Road) to ensure
awareness of community concerns, protection of Cuthbert Holmes Park, consideration of
pedestrian facilities on Admirals north of the bridge and consideration of the replacement
of the Seaton Avenue underpass with an overpass.
9.8
Continue to work with the Ministry of Transportation and Highways and the Provincial
Capital Commission to implement policies in the Scenic Access Corridor Study with
particular attention to mitigating noise and visual disturbance along Portage Road.
9.9
Undertake an evaluation of noise attenuation options and safety along Battleford Avenue
in accordance with the Scenic Access Corridor Study and undertake a program of
implementation.
9.10
When considering plans for proposed road and intersection upgrading and utility
installations, seek to incorporate streetscape improvements and environmental value to
enhance the character of the streetscape.
9.11
Evaluate the access between Bodega Street and Pearkes Community Recreation
Centre in conjunction with local residents and the community association.
9.12
Consider reducing the maximum speed along Gorge Road to 40 km/h.
9.13
Undertake neighbourhood traffic management studies to determine traffic calming
measures where excessive traffic volumes and speed are impacting the safety, liveability
and character of a neighbourhood when requested by the community.
9.14
Undertake a process with the Bicycle Advisory Committee, local residents and the Gorge
Tillicum Community Association to evaluate bicycle lanes on Gorge Road.
9.15
Support local bicycle mobility by:
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designating local bicycle connectors as shown on Map 9.2; and
consulting with Tillicum Gorge Community Association, Bicycle Advisory
Committee and local residents for future local connectors.
Protect quality of life for residents and users of the Galloping Goose regional trail by
supporting landscaping and noise attenuation in discussion with the Ministry of
Transportation and Highways.
9.17
Continue to work with local elementary schools and the Parent Advisory Committees to:
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develop Safe Routes to School plans;
improve pedestrian facilities on designated routes;
reduce vehicular traffic around schools by encouraging walking, cycling, and
transit;
encourage school participation in the Way To Go Program; and
improve bicycle parking facilities at schools.
9.18
Assign a high budget priority for pedestrian facilities and crosswalk installations or
improvements as identified on Map 9.3.
9.19
Acquire rights-of-way for footpaths, sidewalks, bikeways, and greenways particularly at
the time of subdivision. Where applicable, require construction by the developer to
ensure convenient access to schools, bus stops, shopping, parks, and to provide for
continuous pedestrian and recreational routes.
9.20
Require that new sidewalks are separated from the pavement by a curb and boulevard,
except where implementation is considered impractical due to natural topography,
inadequate right-of-way, boulevard trees, or open ditches.
9.21
Install crosswalks on the Gorge Road in consultation with the community.
9.22
Support initiatives by BC Transit to improve transit service, with local area resident
consultation.
9.23
Consider long term upgrading of pavement strength, sidewalks, and other transit
facilities for roads (such as Cowper and Obed) used for transit.
9.24
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10.0
COMMERCIAL
Goal: Maintain a range of commercial services and shopping opportunities within existing
commercially-zoned sites.
Tillicum has a significant concentration of commercial uses including a regional shopping centre
and local neighbourhood commercial centres (see Map 10.1) that provide important services
and amenities. Unlike other parts of Saanich, these commercial centres are within easy access
of residential areas. In addition, the Tillicum area is served by nearby regional commercial sites
such as Mayfair Mall, Town & Country Shopping Centre, Saanich Centre, and Gateway Village.
Tillicum Mall, in the northeast corner of the local area, is a regional shopping centre offering
retail services to residents in Greater Victoria. The mall has 30,470 m2 of floor space and
parking for 1,800 vehicles. In 1998, 930 m2 of commercial, a 5,760 m2 ten-theatre complex and
a parkade structure were added through a development permit. Community residents raised a
number of concerns including the scale of the project, environmental impact to Cuthbert Holmes
Park, traffic volume increases, and social impacts. The proponents made a number of changes
to the plans in response to community issues.
Urban Village Concept
The Saanich General Plan identifies three neighbourhood commercial centres within Tillicum as
shown on Map 10.1. The objective of the General Plan is to strengthen these nodes and create
sustainable “urban villages”. The commercial uses within “urban villages” would be supported
through the intensification of surrounding residential uses, community/institutional services and
urban recreation uses. In addition, pedestrian mobility and access to transit would be
enhanced. Overall, this concept would create vital urban areas that support residential
neighbourhoods. The Regional Growth Strategy is also reviewing options with a similar intent
for Greater Victoria.
Commercial Redevelopment Issues
Opposite the Tillicum Centre are two commercial centres: the Burnside Plaza which offers retail
services and the Bingo Palace. The Bingo Palace has upgraded its access and landscaping. It
is expected, however, that over time, this site may redevelop. The service station at the west
end of Burnside Plaza has also undergone an extensive renovation. The Plaza itself is in need
of refurbishing and landscaping. Access and parking for these two parcels should be
coordinated in the future.
The Gorge Shopping Centre at the corner of Gorge and Tillicum Roads, and the commercial
parcels opposite, provide local retail shopping. A combination of site planning, architecture,
land use, and public amenities (landscaping, benches and public art) should be considered to
support the “urban village” concept. This is a major intersection and therefore, requires careful
attention to the pedestrian environment.
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Much of the commercial strip along Burnside Road West, between Irma Street and Earl Grey
Street, is dated. This area has potential to strengthen its role as a neighbourhood commercial
centre in the form of a three or four block long main street. Parking requirements, traffic
volumes, and streetscape design need to be addressed. Further work is needed to develop and
implement the concept.
The commercial use at Dysart and Obed is not operating. This may reflect a pattern that has
seen commercial (C-1) zoned sites become increasingly financially marginal at the expense of
larger discount retailers. Should the owners wish to rezone, a residential use would be
appropriate.
POLICIES
10.1
Support initiatives by the community association, interested residents, commercial
property owners and business operators to strengthen the “urban village” concept for the
Gorge/Tillicum commercial area.
10.2
Do not support rezoning for new commercial sites except where the proposal is part of a
comprehensive plan in support of an “urban village” area.
10.3
Examine commercial land use and parking as part of the Action Plans for Tillicum
Road and Burnside Road (see Policies 7.6, 9.3 and 9.4).
10.4
Consider rezoning, at the owner’s request, 2986 Dysart Road from commercial (C-1) to
an appropriate residential zone.
10.5
Encourage landscape improvements and building upgrades to Burnside Plaza and
consolidation of parking and access with the adjacent commercial use.
10.6
Support the future re-development of Burnside Plaza to office and multi-family residential
while maintaining a small component of local commercial uses.
10.7
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11.0
INSTITUTIONAL AND PUBLIC ASSEMBLY
Goal: Support community-based institutional services and programs that respond to residential
needs and respect neighbourhood character.
Institutional uses in Tillicum refer to schools, churches, community residential facilities, daycare
centres, and senior facilities. Integration of these uses close to those they serve supports the
concept of a “complete community”.
Institutional and public assembly uses in Tillicum include three schools, four churches, a
daycare, a seniors’ centre and the Victoria United Chapter Society Hall (see Map 11.1). The lot
at the corner of Burnside and Tillicum zoned for assembly use is used by the Municipal Parks
and Public Works Department as a non-conforming use.
The area is served by School District #61. Table 11.1 indicates capacities and enrolments of
the schools within the Local Area. In addition, some Tillicum students attend Esquimalt Junior/
Senior and Shoreline Junior Secondary Schools.
Table 11.1:
School Capacities and Enrolments
District #61 Schools
Craigflower Elementary
Hampton Elementary
Tillicum Elementary
Nominal Capacity
1998 Enrolment
Projected Enrolment*
K
50
K
34
K
44
Elem
250
Elem
245
Elem
309
K
50
K
44
K
45
Elem
300
Elem
301
Elem
285
K
100
K
44
K
35
Elem
325
Elem
256
Elem
242
Spec Ed
7
Spec Ed
7
Spec Ed
7
Colquitz Middle School
600
728
758
Spectrum Community School
700
678
708
Esquimalt Secondary
850
999
987
Shoreline Community School
425
348
304
Source: School District #61
* for the year 2005
All of the schools serving the area have reached or are near capacity. A facility study, reviewing
the estimated and actual enrolments for Colquitz Middle School, is being undertaken by School
District #61.
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It is unlikely that new major institutional uses will locate in Tillicum due to the shortage of large
available land parcels. Any proposed institutional uses should be evaluated for neighbourhood
impact including traffic management, access, site design, scale, available amenities and the
impact on surrounding land uses.
POLICIES
11.1
Consider rezoning applications for institutional uses for sites that are in proximity to or
within an established urban village or regional centre as shown on Map 10.1.
11.2
Require that site design, building scale, and landscaping for new institutional uses
respect the character and scale of the surrounding neighbourhood.
11.3
Continue to work with School District #61, local elementary schools, and parents’
associations to improve pedestrian safety near schools.
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12.0
DEVELOPMENT COST CHARGES
Council may, through bylaw, impose development cost charges (DCCs) to assist in the funding
of capital cost projects for constructing, altering or expanding sewage, water, drainage or
highway facilities, and parkland acquisition or improvement.
The intent of DCCs is to obtain funding from new development to help offset some of the costs
required to service these developments by the Municipality. These cost charges are applied
municipally wide, and to specific DCC areas. A set charge is established for each new lot
created, and for residential and non-residential building permits. DCC funds are applied to a
specific capital work in an area, with additional funds taken from either general municipal
revenues or a Local Improvement Levy.
Map 12.1 shows the established Gorge East Development Cost Charge Area. The bylaw for
this area pertains to sewer, water, storm drains, and roads. The area is also under an areawide DCC which relates to major roads, bikeways, and municipal parks.
Work identified under the Gorge Road East DCC includes:
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construction of Obed Avenue to collector street standards (including sidewalk on one
side) between Tillicum Road and Harriet Road;
construction of the west side of Harriet Road to major road standards between
Burnside Road West and Gorge Road West;
construction of sidewalks as required for “safe routes to school”;
installation of a pedestrian/traffic signal at the intersection of Tillicum Road and Obed
Avenue.
POLICIES
12.1
Continue to use development cost charges to fund upgrades to underground servicing
and street infrastructure.
12.2
Amend the Development Cost Charge Bylaw as required.
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13.0
DEVELOPMENT PERMIT AREAS
Development permit areas (DPAs) provide the Municipality with powers to control development
activities for commercial, industrial, or multi-family uses. By regulating details such as building
design, site layout, and landscaping, the purpose of DPAs is to ensure that significant
developments have positive impacts on the community.
The Local Government Act permits Council, in an Official Community Plan, to designate
development permit areas, and identify objectives and guidelines affecting the form and
character of commercial, industrial, or multi-family development within a designated DPA.
Development permit guidelines may also specify the means of protecting the natural
environment or areas of hazardous conditions.
Within a DPA, an owner must obtain a development permit before subdividing land or
constructing, adding to, or altering a building or specification unless specifically exempt.
Council may issue a development permit which may vary or supplement a regulation of the
Subdivision or Zoning Bylaw. A development permit cannot vary use, density, or floodplain
specification.
There are four development permit areas in Tillicum as shown on Map 13.1. The Portage Road
DPA is based on environmental criteria, while the Tillicum Road, Obed South, and Little EldonBurnside DPAs are based on commercial and residential. In addition, the Saanich General
Development Permit Area applies to any commercial, industrial, multi-family, and for-profit
public uses outside of these DPAs. Justification and guidelines for development permit areas
are outlined in Appendix “N” to the Official Community Plan.
New development permit areas are recommended to protect the riparian areas of the Colquitz
River and the Gorge Waterway backshore (see Map 13.1). It is recommended that the Portage
Road DPA be amended to include all parcels fronting Portage Inlet (see Map 13.1). It is also
recommended that the Obed South DPA be amended to include environmental criteria. These
changes are intended to protect environmentally-sensitive areas which are described fully in the
Environment section.
Development permit guidelines are reviewed and amended periodically to ensure they remain
adequate and relevant. Several community issues that may require amendments in the future
are building setbacks, restricting impervious site coverage, and innovations in on-site
stormwater management.
POLICIES
13.1
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Establish new development permit areas as shown on Map 13.1 to protect the riparian
area of the Colquitz River and the Gorge Waterway backshore.
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13.2
Expand the Portage Road DPA to include all properties fronting Portage Inlet as shown
on Map 13.1.
13.3
Amend the Obed South DPA to include environmental justification and guidelines to
protect the Gorge Waterway backshore.
13.4
Consider amendments to development permit guidelines that apply to riparian and
foreshore areas for building setbacks and site coverage as described in Policy 6.4.
13.5
Apply the appropriate development permit guidelines to new development, as outlined in
Appendix “N” to the Official Community Plan. Consider revisions to these guidelines as
necessary to strengthen the character and environmental health of the area.
DEFINITIONS
Collector Road�a street which provides services to secondary traffic generators (i.e.
neighbourhood commercial centre and parks) and distributes traffic between neighbourhoods,
as well as providing direct access to residential properties. Transit service is permitted.
Commercial�an area developed or zoned for a variety of commercial activities including retail,
service station, office, medical, and assembly type uses.
Community Parks�spaces intended to serve several neighbourhoods. They vary in size from
5 to 20 hectares and will attract users from up to 3 kilometres away. These parks contain
attractors such as higher quality play fields and courts, or special natural or horticultural
features. Fifty percent of secondary schoolyards are considered to be community level open
space.
Commuter Bikeway�an on-road cycling route designated in the General Plan, 1993, to be
developed as a commuter cycling route. This can mean separate signed bike lanes, or wider
outside lanes which permit automobile traffic to pass a cyclist without leaving the lane.
Complete Community�multiple-use urban community that contains within its boundaries, the
full range of facilities and activities necessary to meet typical household needs for employment,
shopping, personal services, recreation, housing, education, and other goods and services.
Complete communities typically are defined by what they are not, that is, single-use residential
areas that serve a largely dormitory function to a larger centre; with few local opportunities to
meet the broad range of household needs described (CRD Regional Growth Strategy).
Development Permit Area�means an area designated under the Local Government Act,
requiring special consideration for the natural environment, hazardous conditions, or the form
and character of commercial, industrial, or multi-family residential development.
62
Floodplain�land contained within the boundary of an elevation contour line depicting the 1.5 m
above the February 1974 flood line as marked on Schedule “A” of Bylaw 7058, Deposit of Fill.
The approximate location is noted on the maps, and the exact location must be determined by
survey.
Floor Space Ratio (FSR)�the gross floor area excluding non-usable areas (those portions
located more than 1.5 m below finished grade) divided by lot area.
General Residential Area�mainly single family dwellings on serviced, urban sized lots with
duplexes, townhouses, and apartments permitted on a specific zoning basis. It also includes
schools, churches, local parks, convenience stores, and small institutional uses.
Infill Lot�a vacant lot or a new lot created by subdivision within the built-up area.
Institutional�public and private establishments including educational, research, health,
correctional, administrative, and cultural facilities and services.
Major Road�a roadway where direct access from abutting properties is limited to safeguard
the flow of traffic and where major intersections are controlled by traffic lights.
Mixed Use Development�an area where the land use is not homogeneously single family
residential. For example, a mix of residential (including multi-family), commercial, office, and
light industrial. The implication is that services and amenities are within walking distance.
Multi-Family Housing�a housing complex containing two or more dwelling units on a lot;
includes townhouses and apartments.
Municipal Parks�parks that serve the entire municipality and are either large enough or
contain unique or special amenities that will attract and serve individuals from the entire
municipality.
Neighbourhood Parks�a park that focuses on local use and attracts people within walking
distance of up to 800 metres. These parks often provide play environments, unstructured open
spaces and play fields for local use. Fifty percent of elementary schoolyards is included as
neighbourhood open space.
Residential Road�a street designed to permit low speed travel within a neighbourhood and
provides access to residential parcels.
Residential Zones�the classification under the Zoning Bylaw 6120 assigned to every
residential parcel. The single family dwelling zones vary from RS-2 to RS-18, which reflects
variations in lot width and area, and building setbacks, height, and size.
Road Network Classification�major roads are intended to accommodate internal and intermunicipal travel. Collector streets are intended to disperse traffic from residential streets onto
major roads, and residential roads provide direct access to residential properties.
63
Sewer Enterprise Boundary�a boundary identifying the area which is serviced or intended to
be serviced with municipal sewers.
Urban Containment Boundary�a boundary established in the General Plan, 1993, and or the
local area plans, to separate urban and rural development. Sewer service does not generally
extend beyond the Urban Containment Boundary.
Urban Village�a growth management concept which is intended to be more sustainable than
traditional suburban development; where a vital commercial node supports and is supported by
residential densities and institutional, community and recreational uses. Pedestrian and bicycle
mobility along with access to transit are fundamental.
64

tillicum local area plan

Transcription

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